Europe

The Greek government has stated its intent to eradicate illegal gambling (land-based and online), viewed as both an economic threat to the state and a societal danger to communities.

The Ministry of National Economy and Finance has been charged with drafting a new legislative framework to prosecute illegal gambling operators, with specific IT and data-driven measures to tackle illicit online gambling.

The mandate has been prioritised by Finance and Economy Minister, Kyriakos Pierrakakis, who told media that the government aims “to stop the loss of €1.6bn annually, including €500m in tax revenue.”

New Economic Threat
This pledge comes amid growing evidence that Greece’s black-market gambling sector has reached alarming levels. According to recent research by the Hellenic Gaming Supervision and Control Commission (EEEP) and Kapa Research, 800,000 Greek citizens — approximately 9.5% of the population, engaged in illegal gambling during 2024.

Among them, 390,000 gambled online, 215,000 did so at physical venues, and 194,000 used both channels. The average annual amount spent per player reached €1,934, and 28% of respondents reported gambling exclusively on unlicensed websites.

Most participants are men aged 25 to 44, though the research also found a troubling rise in gambling among students and young adults — prompting concern among social policy experts and health authorities.

Kyriakos Pierrakakis: Greece
Minister Pierrakakis said: “The numbers are shocking. This is not just a leak of public resources, but a deep social pathology. We are embarking on a determined effort to restructure the space with transparency, rigor and modern tools.”

The Ministry’s legislative package, set for public consultation in autumn 2025, is expected to introduce far-reaching structural reforms. These include the immediate closure of physical venues found facilitating illegal gambling, particularly internet cafés and private clubs.

Businesses proven to be complicit will face revocation of their operating licenses. Individuals obstructing regulatory inspections or enabling illicit activity will face criminal prosecution, including custodial sentences.

Focus on digital surveillance
To counter the digital dimension of the threat, the government will expand DNS filtering mechanisms to block access to unlicensed gambling platforms — over 11,000 of which have already been blacklisted.

A new real-time digital surveillance system, powered by artificial intelligence, will be introduced to identify suspicious activity. Authorities will also begin systematic cross-checking of user data, platform activity, and financial flows, with cooperation from the Bank of Greece.

Beyond enforcement, the government aims to promote prevention and legal alternatives. Public awareness campaigns will be launched to inform citizens of the risks, while self-exclusion tools will be made available for vulnerable individuals. The Ministry also plans to introduce tax incentives to support the legal gambling sector and encourage migration away from black-market platforms.

Hellas joint taskforce
In a significant development in July, the EEEP established a joint taskforce with the national police, the judiciary, and the financial intelligence unit to dismantle criminal gambling networks and prosecute offenders.

Spearheading what it described as a “collaborative approach,” the Commission has called for broader cooperation among government agencies, regulators, and public bodies to engage in unified action against illegal gambling.

Antonis Vartholomaios, President of the EEEP, stressed the importance of sustained institutional collaboration and long-term vigilance. “We are not dealing with isolated incidents, but with a deeply embedded and constantly evolving ecosystem of criminal activity,” he said.

“Our task is not simply enforcement, but building a resilient regulatory framework that can adapt to the digital age. This requires transparency, persistence, and inter-agency coordination — not as a one-time measure, but as a new standard of governance. We will not win this fight with legislation alone, but with unified commitment across the public sector.”

EU watches Greece’s early strike
The implications of Greece’s initiative are likely to be felt beyond its borders. With Poland assuming the Presidency of the Council of Europe in early 2025, it has already called for the European Union to explore the development of harmonised legislation and cross-border protections against black-market gambling and its ‘economic encroachment’.

Concerns and anxieties have been raised by regulators in the UK, Germany, and the Netherlands over the rapid growth of illicit online gambling — an issue fast becoming a shared regulatory dilemma across the European bloc.

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The Hellenic Gaming Commission (EEEP) will establish a task force “to combat the scourge” of illegal gambling networks.

The task force will be composed of EEEP units working in coordination with Greece’s national police, judiciary, and financial intelligence unit to dismantle criminal networks and prosecute offenders. Spearheading a “collaborative approach,” the EEEP has called upon broader government agencies and public bodies to engage in joint initiatives.

A deep cooperation is needed as EEEP seeks to understand how illegal gambling networks have used technology to bypass regulatory systems and engage with Greek online consumers.

Particular emphasis will be placed on understanding the operational tactics of illegal networks including their use of social media, encrypted messaging apps, and database marketing and the methods through which they obscure financial flows via layered transactional systems.

New intelligence from this initiative will be shared with government stakeholders to shape new policies and protective measures aimed at fortifying Greece’s regulated online gambling sector.

“Members must take unified legal action in Greece and use their capabilities to address this matter. Some recent actions taken (e.g., with the UK) are being assessed by a working group. To this end, there are legal provisions and a legislative framework that the EEEP may activate when necessary,” the Commission stated.

The Hellas Gambling Law was last revised in 2021, formally empowering the EEEP to introduce a permanent online gambling licensing regime. The framework ended a decade-long “grey market transition” by issuing seven-year licences, taxed at €3 million each, for betting and casino operations. The reform brought regulatory clarity and tax accountability to foreign operators that had previously operated under provisional licences.

To underscore the need for continued vigilance, the EEEP has published its economic update on the Greek gambling market, revealing a Gross Gaming Revenue (GGR) of €1.24 billion for the period January to May 2025.

The data continues to illustrate a marked shift in consumer behaviour, with online gambling channels now firmly dominating the market. Of the total GGR, over €528 million was generated from online operators, compared to €456 million from land-based betting shops. This hyper divergence highlights the increasing preference of Greek consumers for digital platforms, particularly in sports betting and online casino gaming.

The EEEP emphasises that the creation of the task force is essential to counter growing concerns over the black market. Unlicensed operators are believed to be exploiting online channels to evade tax obligations and undercut licensed providers.

These trends, the Commission warns, pose a direct threat to state revenues and the integrity of the regulated market. Launching the task force and reinforcing its data capabilities, the EEEP aims to restore public trust, protect consumers, and ensure that gambling tax contributions from licensed operators remain robust.

TonyBet has received a warning from the Netherlands Gambling Authority, Kansspelautoriteit (KSA), after the operator listed betting markets on the winner of the Ballon d’Or and the FIFA Club World Cup Golden Boot.

Under Dutch law, such wagers are prohibited because they are decided by votes or jury verdicts rather than by measurable sporting performance during official competitions.

In the Netherlands, the law states licensed sportsbooks can only offer bets on official sports events organised by trusted national or international groups, and only when the results are based on a clear and checkable performance.

The authority made it clear in its statement that awards off the field fall outside of these parameters.

The response
TonyBet confirmed that no bets had been placed on the offending markets before they were removed, and has promised to tighten controls over its sportsbook content to prevent similar breaches in the future.

While the KSA has decided to issue a warning on this occasion, it reiterated that licensees are fully responsible for every betting option available on their platforms, even when those markets are supplied by third-party providers.

The warning to TonyBet comes amid a sustained period of heightened enforcement from the KSA.

Starting 1 January 2025, the organisation implemented a new ‘General Policy of Fines’ to govern Dutch gambling licences. The fine structure was organised into five categories, with basic penalties ranging from €500 (£430) for Category 1 violations up to €2m (£1.7m) for the most serious offences in Category Five.

As the KSA explained: “The New General Policy of Fines aims to ensure penalties are appropriate and serve as punitive and preventive measures. It seeks to deter violations and promote compliance with gambling regulations.”

KSA flags gambling tax concerns
The latest enforcement work is unfolding against the backdrop of mounting financial pressure on the regulated Dutch betting market. The regulator has just warned that January’s rise in gambling tax from 30.5% to 34.2% is hurting the country.

A new impact assessment shows gross gaming revenue falling across both online and land-based sectors, leading to lower tax receipts instead of the expected boost.

KSA Chair Michel Groothuizen cautioned that weakening the financial position of licensed operators undermines long-term player protection. With another hike to 37.8% due next year, the authority is looking for a rethink on certain policies.

New beginnings
In other news, this week the KSA has appointed Marjolein Hoogland, Chief Attorney General of the Dutch Court of Appeal, and Erasmus University Professor Ingmar Franken to its Objections Advisory Committee – which reviews licensee appeals.

They join President Anita Vegter, two existing members, and three independent Chairs at a time when the panel’s workload is expected to grow as new KOA reforms, tighter marketing rules and player protection measures reshape the Dutch market.

French authorities will adopt new enforcement tools to fight corruption in sports, as new legislation classifies match fixing as an organised crime…

The government of France has classified match-fixing in sports as seriously as organised crime under new amendments included in its law to fight drug trafficking and corruption activities undertaken with proceeds linked or related to drug dealing.

An amendment added in January as part of a bill targeting drug trafficking reclassified match-fixing from a minor offense to a serious crime. The law was approved on 13 June and cases will now be handled by specialised inter-jurisdictional courts (JIRS) that deal with complex criminal matters to enable deeper investigations into corruption in sport.

The law also grants investigators new enforcement tools such as wiretaps, hidden microphones, surveillance, undercover operations and prolonged detention periods. These were previously reserved for cases like drug trafficking, human trafficking and large-scale fraud.

Those convicted of match-fixing in France can now face up to 10 years in prison and fines reaching €1m.

The new measures cover corrupt activities undertaken by private citizens in a context of “passive bribery committed by a participant in a sporting event or horserace where bets are taken, and active bribery committed by a private individual in the direction of such a person”.

They are supported by the regulator Autorité Nationale des Jeux (ANJ) systems that record all wagering data to detect atypical bets and unusual odds. As part of the framework, ANJ can decide to ban betting on a competition if there are major indications of manipulation.

ANJ’s anti-match fixing monitoring and training teams meet every six weeks and its teams also train young athletes, magistrates and civil servants to assist them in identifying and detecting cases of sporting fraud linked to betting.

North Macedonian ministers and political parties are preparing for a parliamentary battle over the terms and adoption of a new Gambling Law.

Changes will radically reshape the sector, introducing long restrictions sought by Prime Minister Gordana Siljanovska-Davkova but drawing fierce opposition from industry groups and opposition parties warning of an ‘economic fallout’ for Europe’s youngest economy.

Last year, the newly empowered ‘nationalist coalition’, led by Davkova following her election in 2024, pledged to overhaul the Gambling Act as part of a broader anti-corruption and EU accession strategy. For the nationalist coalition, gambling reform is positioned as both a public health imperative and a political statement on transparency.

The draft legislation, approved by the cabinet in July and presented to the National Congress by Deputy Prime Minister Izet Mejhiti, is billed as a decisive step to curb the influence of the so-called “gambling mafia,” protect minors, and tighten market oversight.

Key provisions include relocating casinos, slot machine clubs, and betting shops with gambling machines at least 500 metres from schools, banning gambling advertising, raising operator taxes and fees, and ending the practice of opening unlimited outlets under a single licence.

Supporters argue the reforms could cut gambling’s physical presence by as much as 70%, reduce youth exposure, and consolidate regulatory control in a market that has expanded steadily for over a decade.

Of significance to stakeholders, North Macedonia’s gambling sector is the country’s largest private-sector employer and hosts over 1,000 land-based venues—casinos, gaming halls, and sportsbooks — operating under a relatively accessible licensing regime with moderate fees. Between 2018 and 2022, state revenue from gambling rose from around €61m to €88m.

Yet the proposal has triggered a sharp backlash from industry associations, including ASOM and APIS, who warn of severe economic fallout. Critics say the bill embeds loopholes that allow certain betting shops to remain near schools, institutionalises exemptions for favoured operators, and most controversially creates a state monopoly over online gambling – viewed as a direct competition block against licensed businesses.

4H Agency, who have been following the Gambling Law’s progression since its inception, warn caution on proceedings: “This legislation is a double-edged sword. While it addresses legitimate concerns about problem gambling and organised crime, the creation of a state monopoly online risks driving players to unregulated platforms and undoing the law’s intended safeguards.

North Macedonia’s gambling regime is already one of the most complex in Europe, marked by fragmented authority, overlapping jurisdictions, and deep ethnic and political conflicts.

Industry leaders fear the new law could exacerbate these problems while wiping out over 10,000 direct jobs, jeopardising another 50,000 in supporting industries, and stripping €280m in annual tax revenue from the state budget.

The 4H Agency further cautioned: “Without a proper transition plan for affected workers and a robust enforcement framework, the law may inflict economic damage without delivering the promised social protections.”

Stakeholders have condemned what they describe as a rushed process with no formal public consultation or economic impact study. “This is not regulation; this is consolidation of control into the hands of a few,” ASOM said in a statement, calling for a full stakeholder review before the bill advances.

Observers warn that beyond the immediate compliance burden, the government will face a test of its ability to both enforce the new regime and safeguard state revenues.

In 2024 the previous parliament passed amendments to the Gambling Act, only for then-President Stevo Pendarovski to refuse his signature, demanding revisions. Now the balance of power has shifted, and the Davkova government has the political capital to push the changes through — though not without a fight.

If enacted in its present form, the legislation would mark the most radical restructuring of the country’s gambling sector in decades. It would also test whether the government can navigate the trade-offs between social policy, fiscal prudence and the realities of criminal enforcement in one of the Balkans’ most politically fragmented states.

The government of Georgia continues to toughen the compliance enforcement of the gambling industry.

Following sweeps conducted by the Georgian Revenue Service details over 30,000 citizens have been added to the government’s new centralised national self-exclusion system up by 4,000 since May.

The enforcement follows drastic regulatory reforms introduced in 2024 by the direct order of Prime Minister Irakli Garibashvili, who placed the Revenue Service to oversee penalty enforcements and the surveillance of gambling licences.

As of June 2024, Georgia raised the legal gambling age to 25, a measure backed by the introduction of “biometric Id checks across all licensed venues”, with a view to directly bar a swathe of the population from participating entirely.

Public-sector employees and individuals with criminal convictions, numbering some 1.5 million citizens, are now prohibited from gambling under recent amendments to Georgia’s Code of Administrative Offences. The measures reflect an effort to align policy with growing concerns about addiction, debt, and the social costs of gaming.

The exclusion registry, which previously required institutional approval, can now be accessed directly by individuals. Of the 30,451 currently listed, the vast majority (30,392) joined voluntarily. The remainder were added by court order.

As reported by SBCEurasia.com: “Those on the list are banned from gambling on any licensed platform, online or offline, for five years. Removal is only possible in two cases: renunciation of citizenship, or by judicial review three years after initial registration.”

Technological controls have also been tightened. Biometric identification systems, now mandatory at casinos and betting halls, are designed to verify age and identity at point of entry. Officials say the same infrastructure supports secure, confidential access to the exclusion list, and ensures compliance with privacy laws.

Yet more changes may be on the way. While the government has already imposed heavier licensing fees on operators, it is now weighing whether to raise the tax on player winnings from 2% to 5%. A decision is expected as part of the new national budget, due before the end of 2025.

The biometric controls, age restrictions, and exclusion orders unprecedented in the region have raised concerns about compliance costs and potential impact on investment. Meanwhile, ambiguity remains over future tax policy, including the potential rise in withholding on player winnings.

As PM Garibashvili cites that he will continue to crack the whip, the message is clear: gambling may remain a part of Georgia’s economy, but it will be tolerated only on the state terms only.